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Canada-Ontario
Canada-Ontario Agreement
Agreement on
onGreat
GreatLakes
Lakes
Water
Water Quality
Quality and
and Ecosystem Health 2021
Ecosystem Health
2021
Summary
Canada-Ontario Agreement on Great Lakes Water Quality and Ecosystem Health, 2021 – Summary.
ISBN: PRINT: 978-1-4868-5348-9
PDF: 978-1-4868-5350-2
HTML: 978-1-4868-5349-6
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Aussi disponible en français
2
Introduction
Overview of the Canada-Ontario Agreement on Great Lakes
Water Quality and Ecosystem Health (COA)
The Great Lakes are the largest group of freshwater lakes on Earth, containing 20 percent of
the world’s surface freshwater. They provide significant ecological goods and services that are
important to the region’s human, economic and environmental health.
The Canada-Ontario
The Canada-OntarioAgreement
Agreement ononGreat
Great Lakes
LakesWater
WaterQuality andand
Quality
Ecosystem
EcosystemHealth
Health(COA)
(COA)is isanan
agreement
agreement between
between thethe
Government
Government The Great Lakes
of Canada
of CanadaandandProvince
ProvinceofofOntario
Ontario(the
(theParties)
Parties)to restore, protect
to restore, protect community includes:
and
and conserve
conserveGreat
GreatLakes
Lakeswater
waterquality
quality and ecosystem
and ecosystem health. TheThe
health.
Parties signed • First Nations and
Parties signedtheir
theirfirst
firstAgreement
Agreement in in
1971.
1971.Since then,
Since the the
then, GreatGreat • First Nations and
Lakes Métis
Lakescommunity
communityhas hascollaborated
collaborated to to
implement
implement eight subsequent
eight subsequent Métis
agreements. Based
agreements. Basedon onshared
shared understanding
understanding andandcommitment,
commitment, • municipal
the
the achievements
achievementsinclude
includesignificant
significantreductions
reductions in persistent toxic
in persistent toxic • municipal
governments
substances and
substances andexcess
excess phosphorus,
phosphorus, andand thethe
return of native
return species
of native species governments
such
such as
asthe
theBald
BaldEagle.
Eagle. • conservation
•authorities
conservation
In
In 2021,
2021,Canada
Canadaand Ontario
and Ontario celebrate thethe
celebrate 50 th50th
anniversary
anniversaryof of authorities
the first
the first COA
COAsigning
signingand
andthe
thesigning of of
signing thethe
ninth Agreement.
ninth Agreement. TheThe • non-government
impacts of •organizations
non-government
impacts ofaachanging
changingclimate
climate and invasive
and species
invasive make
species makethisthis
COACOA
more relevant organizations
more relevant than
thanever.
ever.Continued
Continuedcollaboration
collaboration willwill
sustain thethe
sustain
progress made • scientists
progress madetogether
togetherover
overthe past
the half-century
past half-century andand protect the the
protect • scientists
Great Lakes
Great Lakesfor
forgenerations
generations totocome.
come. • the industrial,
Canada and Ontario work together through the Agreement to •agricultural,
the industrial,
Canada and Ontario work together through the Agreement to agricultural,
implement federal commitments under the Canada–United States recreational,
implement federal commitments under the Canada–United States recreational,
Great Lakes Water Quality Agreement (GLWQA) and provincial tourism and other
Great Lakes Water Quality Agreement and provincial commitments tourism and other
commitments under the Made-in-Ontario Environment Plan, sectors
under the Made-in-Ontario Environment Plan, Ontario’s Great Lakes sectors
Ontario’s Great Lakes Strategy and Great Lakes Protection Act, 2015.
Strategy and Great Lakes Protection Act, 2015. • the public
To read the full Agreement, visit: • the public
To read the full Agreement, visit:
Canada-Ontario Great Lakes Agreement
Canada-Ontario Great Lakes Agreement.
3
3
Quick facts about the Great Lakes
• They contain approximately 20 percent of the world’s surface freshwater.
• They are ecologically important and support significant biological diversity.
• They supply drinking water for the majority of Ontarians.
• The region plays a vital role in the physical, social and economic life of Canada.
• They support sectors including manufacturing and agriculture production, recreation
and tourism.
Key components of the 2021 Agreement
The Agreement strives to achieve the shared vision of a healthy, prosperous and sustainable
region for present and future generations. It includes guiding principles, priority areas, and 13
Annexes (areas of focus) that outline how the Parties respond to existing or emerging priorities
over the five-year span of the Agreement. Each Annex identifies specific results to achieve and
commitments for Canada and Ontario.
Figure 1: Annexes of the 2021 Canada-Ontario Agreement on Great Lakes Water Quality and
Ecosystem Health
Engaging
Protecting Enhancing
Protecting Improving Communities
Habitat and Understanding
Waters Coastal Areas - From Awareness
Species and Adaptation
to Action
Nutrients Areas of Concern Aquatic Invasive Groundwater From Awareness
Harmful Pollutants Lakewide Species Quality to Action
Wastewater and Management Habitat and Climate Change Métis and the
Stormwater Species Impacts and Great Lakes
Resilience First Nations and
Discharges from
Vessels the Great Lakes
4
Science-based management is a guiding principle of the Agreement. Priorities, policies and
programs are established and adapted based on the best available science, research and
knowledge, including traditional ecological knowledge.
Implementation of the Agreement
The COA Executive Committee oversees the coordination
and implementation of the Agreement. Environment Seven federal departments
and Climate Change Canada and the Ontario Ministry and three provincial
of the Environment, Conservation and Parks co-chair ministries are signatories to
the Committee and members consist of federal and the 2021 COA:
provincial senior officials that contribute to COA
implementation. New to the 2021 COA, First Nations and Departments:
Métis representatives are invited to participate in COA
• Environment and Climate
Executive Committee meetings in addition to meeting
Change
annually with COA Executive Committee co-chairs to
discuss priorities and actions to achieve the purpose of • Agriculture and Agri-Food
the Agreement.
• Fisheries and Oceans
The COA Executive Committee’s responsibilities
include reviewing priorities, undertaking evaluations • Health
and assessments of the Agreement, recommending
• Natural Resources
amendments and/or actions, and facilitating discussions
and collaboration with the Great Lakes community and • Transport
government partners.
• Parks
Federal and provincial Annex leads oversee Annex-
specific activities. This includes coordinating projects to Ministries:
achieve the commitments, undertaking annual progress
• Environment,
assessments, and ensuring opportunities for engagement,
Conservation and Parks
participation and coordinated action with the Great Lakes
community and partners, including First Nations and Métis. • Natural Resources and
Forestry
Progress reporting is an important part of the Agreement.
Canada reports progress through the Great Lakes Water • Agriculture, Food and
Quality Agreement, and Ontario reports progress under the Rural Affairs
Great Lakes Protection Act, 2015. The Parties also report on
progress jointly under COA.
5
Priority:
Protecting Waters
Annex 1: Nutrients
Since the mid-1990s, there has been a resurgence of algae blooms in Lake Erie, Lake Huron
and Lake Ontario, and algae blooms are beginning to appear in Lake Superior. Annex 1
addresses excess nutrients and aims to reduce harmful and nuisance algae blooms and low
oxygen zones (hypoxia).
The causes of algae blooms are complex. The introduction
of invasive species, agricultural production system
changes, increased urbanization and climate change
contribute to algae blooms. Working with the Great Lakes
community, this Annex strives to attain the sustainable
use of nutrients for the continued health and productivity
of the Great Lakes ecosystem. Emphasis continues to be
on Lake Erie and working with partners to implement
the Canada-Ontario Lake Erie Action Plan. Specific
commitments include:
• enhancing the scientific understanding of sources of
nutrients, nutrient dynamics and transport, and the
role nutrients play in the development of algae blooms
• developing phosphorus concentration and loading
targets, including for priority tributaries, nearshore,
and offshore waters of Lakes Erie and Ontario
• developing action plans and approaches to work
towards achieving targets
• increasing the efficiency of nutrients used in
agriculture to support a healthy A cyanobacteria algae bloom
Great Lakes ecosystem and economy in the Thames River, a priority
Lake Erie tributary
6
6
Annex 2: Harmful Pollutants
Harmful Pollutants are chemicals or pathogens (disease-causing organisms) that harm
human or ecological health, including, but not restricted to, Chemicals of Concern or
substances of emerging concern. Industries, institutions, agricultural operations and
residences are sources of chemicals in our waters. Canada and Ontario have been working
to reduce or eliminate the release of harmful pollutants into the Great Lakes basin. Many
accomplishments have been made, including significant reductions in Canadian releases
of mercury, dioxins and furans. However, more work is needed to understand the potential
sources of chemicals and to further manage risks these chemicals pose to the environment
and/or human health.
Annex 2 guides actions to reduce or eliminate
releases of harmful pollutants into the Great
Lakes basin. It contains commitments to
cooperate on specific research, monitoring,
surveillance and risk management actions related
to Chemicals of Concern – a list of chemicals
that Canada and Ontario agree are of concern to
human health or the environment. This Annex
includes actions to reduce the risks and impacts
of plastic waste and microplastics. This includes
supporting plastic pollution capture and clean-up
projects, supporting efforts under the Canada-
wide Strategy and Action Plan on Zero Plastic
Waste, advancing research, surveillance and
monitoring on plastic and microplastic pollution,
and enhancing awareness and education.
Small plastic pellets called “nurdles”
accumulate on the shore of a Lake Nipigon
beach in the Lake Superior basin
7
Annex 3: Wastewater and Stormwater (new)
Wastewater and stormwater carry nutrients and harmful pollutants such as salt, pathogens
and contaminants into the Great Lakes. Management of wastewater and stormwater is
critical to keeping the Great Lakes clean and protecting water quality, beaches and public
health.
Improving wastewater and stormwater management requires significant investments,
long-term planning and clear standards and policies. Many partners play a role, including
federal, provincial and municipal governments. Specific commitments in this new Annex
relate to:
• reducing excess nutrient and contaminant loadings from stormwater and wastewater
collection and treatment systems
• conducting research and monitoring that advance understanding of contaminant
concentrations
• promoting best management practices in road salt application, certification and
alternatives
Annex 4: Discharges from Vessels
In Canada, the federal government has exclusive jurisdiction over navigation and shipping.
Existing laws, regulations, regulatory programs, inspection protocols and enforcement
regimes are designed to address threats to the Great Lakes from vessel discharges.
Canada and the United States have committed to prevent and control discharges that
are harmful to Great Lakes water quality. Discharges of polluting substances have been
addressed under the GLWQA, since 1972. Oil was originally the greatest concern. More
recently, the introduction of aquatic invasive species (e.g., zebra mussels) into the Great
Lakes has brought attention to discharges from ships’ ballast water.
Annex 4 includes a commitment to limit and control vessel discharges that are harmful to
water quality. It focuses on addressing discharges of harmful quantities of oil or hazardous
pollutants, garbage, wastewater and sewage; taking measures to prevent the release of
aquatic invasive species and pathogens due to biofouling and ballast water; and preventing
harm from antifouling systems.
8
Priority:
Improving Coastal Areas
Annex 5: Areas of Concern
Beneficial use impairment (BUI) means
Areas of Concern (AOCs) are geographic environmental degradation as a result of
a reduction in the chemical, physical or
areas in the Great Lakes identified in the mid-
biological integrity of the Great Lakes.
1980s because human activities had severely Canada and the U.S. have identified 14
degraded water quality and ecosystem health. BUIs. All BUIs must be addressed for
Environmental degradation was mainly caused the AOC to be restored and begin the
by past industrial activities, agriculture, urban delisting process.
and rural runoff and land use practices, and 1. Restrictions on Fish and Wildlife
municipal wastewater effluent. Consumption
Following the 1987 Protocol to the GLWQA, 2. Tainting of Fish and Wildlife Flavor
Canada and the United States formally 3. Degraded Fish and Wildlife
recognized 43 locations as AOCs: 12 in Populations
Canada, 26 in the United States, and five 4. Fish Tumors or Other Deformities
binational AOCs. 5. Bird or Animal Deformities or
Reproduction Problems
Working with community members and
local governments, Canada and Ontario are 6. Degradation of Benthos (organisms
living at the bottom of bodies of water)
implementing Remedial Action Plans (RAPs)
to restore beneficial uses within the AOCs. 7. Restrictions on Dredging Activities
Significant progress has been made to date. 8. Eutrophication or Undesirable Algae
Three of the Canadian AOCs are remediated, 9. Restrictions on Drinking Water
and two are in recovery. Annex 5 aims to Consumption or Taste and Odor
restore water quality and ecosystem health Problems
in the remaining AOCs with the long-term 10. Beach Closings
goal of delisting all AOCs and ensuring that 11. Degradation of Aesthetics
environmental improvements are sustained. 12. Added Costs to Agriculture or
This Annex includes commitments to develop Industry
and implement a process to engage First 13. Degradation of Phytoplankton and
Nations and Métis on remediation of AOCs and Zooplankton Populations
decision-making on delisting AOCs, considering 14. Loss of Fish and Wildlife Habitat
traditional ecological knowledge when offered.
9Figure 2: Map Illustrating Great Lakes Areas of Concern
Annex 5 specifies actions to achieve
delisting criteria and restore beneficial
uses in: Nipigon Bay; Peninsula Harbour,
Niagara River, Port Hope Harbour,
Bay of Quinte and St. Lawrence River.
It also includes actions to continue
improvements in: Thunder Bay, St. Marys
River, St. Clair River, Detroit River, Hamilton
Harbour and Toronto and Region AOCs.
Restoration of beneficial uses in the AOCs
in Recovery (Jackfish Bay and Spanish
Harbour) continue to be monitored.
The osprey is a fish-hunting bird that can be
found close to Great Lakes shores, including
inland lakes and rivers in the Great Lakes basin
10Annex 6: Lakewide Management
It is important to consider Great Lakes’ health on a local scale and a lakewide scale. Annex 6
focuses on restoring, protecting and conserving the Great Lakes on a lake-by-lake basis. It
builds on and supports existing and new initiatives in priority geographies in each Great Lake
to help achieve ecosystem objectives, including commitments outlined in the GLWQA.
This Annex includes specific commitments related to:
• using science-based ecosystem indicators to assess and report on the status of each of the
Great Lakes and addressing lakewide issues through Lakewide Action and Management Plans
• completing an assessment of the Canadian Great Lakes nearshore waters – the areas
between the shore and deeper waters
• engaging the Great Lakes community in decision making and acting on lake-specific issues
• developing a process to engage with First Nations and Métis in decision-making and the
application of traditional ecological knowledge, when offered, as it relates to assessing lake
status, identifying priorities
and taking action to address
issues on a lakewide basis
• identifying and assessing
potential risks to the Great
Lakes as a safe drinking
water source
An aerial shot of the Randle Reef sediment remediation
project in the Hamilton Harbour Area of Concern
11Priority:
Protecting Habitat
and Species
Annex 7: Aquatic Invasive Species
Aquatic invasive species are a significant environmental and economic threat to Great Lakes
ecosystems and biodiversity. Aquatic invasive species have severely damaged the Great Lakes by
outcompeting native species, altering food webs, degrading critical habitats for fish and wildlife
populations and degrading water quality. Aquatic invasive species threaten the economy by
affecting industries such as tourism, recreational and commercial fisheries, and disrupting water
supply for municipal drinking water, power plants and industry.
Significant progress has
been made to prevent the
introduction and spread of
harmful aquatic invasive
species to the Great Lakes
basin. However, continued
efforts are needed across
jurisdictions to reduce
threats to water quality and
ecosystem health.
Biologists conducting early detection surveillance and
response work to prevent Grass Carp from becoming
established in the Great Lakes
12Annex 7 includes commitments to:
• implement ballast water regulations in Canada to protect the basin from the discharge of
aquatic invasive species from ships
• assess the risks of potential new aquatic invasive species and pathways for introduction
• ensure regulations, policy and management actions prevent or reduce the spread of aquatic
invasive species
• reduce sea lamprey populations to levels that support fish community objectives
• support coordinated early detection and response to new invasions
• improve the tools available for detection, control and management of established aquatic
invasive species
• strengthen outreach to the Great Lakes community to prevent the introduction and spread of
aquatic invasive species
Annex 8: Habitat and Species
Thriving habitats and native fish and wildlife communities contribute to the social and economic
vitality of the region. Unfortunately, many human activities put pressure on the ecosystem. This
can result in habitat loss or degradation, fragmentation of natural systems, reductions in the
health and abundance of native species, and threats from invasive species.
Annex 8 focuses on restoring, protecting and conserving the diversity of habitats and species
that make up the Great Lakes ecosystems while providing sustainable social, ecological and
economic benefits. It includes commitments related to:
• identifying priority habitats to protect and restore
• identifying threats and protecting, enhancing or restoring habitat and native species
• understanding vulnerability to climate-related impacts and resilience of coastal wetlands
• engaging the Great Lakes community in habitat and species conservation
13Priority:
Enhancing Understanding
and Adaptation
Annex 9: Groundwater Quality
Groundwater refers to the water under the Earth’s surface found in cracks and spaces in
the sand, soil and rock. Groundwater circulates as part of the water cycle and represents
over 40 percent of the water entering the Great Lakes. The continued flow of good quality
groundwater plays an important role in Great Lakes water quality and ecosystem health.
Annex 9 includes commitments to update a binational state of groundwater science report,
identify future research priorities, and identify priority areas and sites for groundwater
monitoring, management or remediation. Groundwater quality is linked to the successful
delivery of commitments in other Annexes, including Areas of Concern, Lakewide
Management, Harmful Pollutants, Nutrients and Habitat and Species.
Annex 10: Climate Change Impacts and Resilience
Climate change affects physical, chemical and biological processes and aquatic ecosystems.
It impacts people, public health, communities and infrastructure in the Great Lakes region.
Warmer water, changing precipitation patterns, extreme variability in lake levels, decreased
ice coverage, increased lake evaporation and extreme weather events are among the most
evident impacts.
Federal and provincial programs that help Canadians adapt to climate change complement
the efforts addressed in Annex 10. This Annex contains commitments that will:
• improve our understanding of climate change impacts on Great Lakes water quality and
ecosystem health
• assess existing and future climate change vulnerabilities and risks
• advance the integration of climate change considerations into Great Lakes management
strategies
• share climate change information with the Great Lakes community
• help communities build climate change resilience and adapt to climate change
14Priority:
Priority:Communities
Engaging
Engaging
– Communities
From Awareness –
to Action
From Awareness to Action
Annex 11: From Awareness to Action
The Great Lakes are an essential part of everyday life for 99 percent of Ontarians. They
provide drinking water, food and electricity, and moderate climate. They provide recreation
and tourism opportunities, and they are the economic backbone of Ontario. Their natural
beauty nourishes our spirit, and they connect us with our heritage. Ensuring that the Great
Lakes are healthy and that resources are managed sustainably is vital to the Lakes and the
people who live and work here.
Despite the many benefits of living in
the Great Lakes basin, many people are
unaware of the connections between their
activities and lake health. Providing more
information, education and awareness
of the Great Lakes will increase overall
appreciation for the Lakes and motivate
individuals to get involved. Annex 11 seeks
to include a broad range of Canadians in
dialogue, planning and priority setting. It
encourages the Great Lakes community
to build awareness, expand Great Lakes
experiences and take action.
Kayakers paddling over one of many historic
shipwrecks in Lake Huron
15
15Annex 12: Métis and the Great Lakes
Canada and Ontario work with Métis on a good governance basis on a wide range of
environmental protection issues. The Agreement supports opportunities for Métis to
participate in and contribute to Great Lakes initiatives. Annex 12 provides a framework for
Canada and Ontario to build relationships, engage and collaborate
with Métis on implementing actions and consider traditional
Good Governance
ecological knowledge, when offered, in efforts to help restore,
means to pursue
protect and conserve Great Lakes water quality and ecosystem
a decision-making
health. This includes ensuring Métis are actively engaged in
process based on
Great Lakes decision-making and have the capacity to act on Great
public participation,
Lakes issues. Finally, Canada and Ontario are committed to working
transparency and
with Métis to ensure their specific consumption habits
accountability.
are considered when developing fish consumption advisories.
Annex 13: First Nations and the Great Lakes
There are many First Nations communities within the Great Lakes basin. First Nations value
their spiritual and cultural relationship to the Great Lakes. They contribute to protecting
water quality and ecosystem health through the wise use and management of land and
water in their communities. Annex 13 provides a framework for Canada and Ontario to
build relationships and engage and collaborate with First Nations on a good governance
basis. It supports engagement with First Nations in taking action, decision-making
processes, considering traditional ecological knowledge, when offered, to restore, protect
and conserve Great Lakes water quality and ecosystem health. This includes a commitment
to working with First Nations to ensure their specific consumption habits are considered
when developing fish consumption advisories.
16Looking to the Future:
Collaborating for Success
Everyone has a role to play in protecting, restoring and conserving the Great Lakes.
The COA 2021 gives momentum to broader efforts and helps facilitate collaborative
arrangements and collective action among all people and organizations interested in
protecting the Great Lakes.
Enhanced engagement of the Great Lakes community from all sectors will help to achieve
shared Great Lakes outcomes.
Photo credits
Cover: W. Bakowsky, Ministry of Natural Resources and Forestry
Page 5: Dan Bittman, Lower Thames Valley Conservation Authority
Page 6: Audrey Nerino, Lakehead University Department of Geography and the Environment
Page 10: HyperActive
Page 11: Fisheries and Oceans Canada
Page 15: Ontario Parks
Back cover: Lake Superior, Katherine Cove, Lake Superior Provincial Park.
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